Statement of Senator Jon S.
Corzine
November 14, 2001
Senate Environment and Public
Works Committee, Subcommittee on Superfund on Toxics and Risk and Waste
Management
Thank you, Madame Chairman. I want to start by thanking you, Senator
Jeffords and Senator Clinton for working with me on S. 1602. Madame Chairman, your long-standing leadership
in environmental and public health protection is a great asset to the Senate,
and I am proud to have you as an original cosponsor of this bill. I also want to thank you and Senator Chafee
for holding this hearing today. I think
we need to get moving on this issue, and today=s hearing gives us
an opportunity to gather information about how best to proceed.
Madame Chairman, in the wake of the attacks
in New York and Washington, it is clear that we need to look at all of our
nation=s assets and people as potential terrorist
targets. We need to shore up
vulnerabilities that have already been exploited, such as airline
security. But just as importantly, we
need to identify other vulnerabilities and address them proactively, before the
fact.
I believe that one of our most obvious
vulnerabilities is our nation=s chemical
production, processing, transportation and disposal infrastructure. Like the Chairman=s home state, my
state of New Jersey is the site of numerous industrial chemical
facilities. These businesses have
helped to build New Jersey=s economic strength,
and they produce valuable products that are essential to the nation=s economy. But the chemicals found at these businesses
also pose potentially grave risks to their workers and the communities that
surround them. Some of these chemicals
are highly toxic, such as chlorine, ammonia or hydrogen sulfide; others are
highly flammable. They can all have
major impacts on our communities.
In 1995, an explosion at a facility in Lodi,
New Jersey killed five people. In June
1998, a release of cresol from a facility in Paterson, New Jersey forced the
evacuation of a nearby school, and caused nausea and headaches in more than 50
kids, two of whom were hospitalized overnight.
These incidents are troubling, but they pale in comparison to the most catastrophic
chemical accidents that have occurred.
The release of methyl isocyanate gas from a chemical plant in Bhopal,
India in 1984 caused more than two thousand deaths and many thousands of
injuries. And in September of this
year, an explosion fertilizer plant in France caused 29 deaths, thousands of
injuries, and damaged thousands of buildings.
Fortunately, we have not had such
catastrophic accidents here in the United States. But there is no question that the potential for severe harm
exists at some facilities. Some of the
most compelling evidence in this regard are the worst-case release scenarios
that have been developed by approximately 18,800 chemical facilities as part of
EPA=s Risk Management Plan. One component of the worst-case scenarios is
an estimate of the number of people that could be adversely affected by a Aworst-case@ release. An EPA analysis of the data shows that the
median number of people affected by a toxic worst-case release is 1,500. That means that the worst-case scenario at
thousands of plants has the potential to impact thousands of people. In the case of some plants that are close to
large population centers, the number of people potentially impacted by a
worst-case scenario is more than a million.
I certainly don=t want to name any of those facilities in
this forum, but suffice it to say that New Jersey, with its dense population,
has its share.
Because of the potential to harm so many
people by causing a chemical release, chemical plants are attractive targets to
terrorists.
This is not just my opinion, Madame
Chairman. The Department of Justice
studied this matter last year and concluded in an April 18, 2000 Report that
there is a Areal and credible threat@ that terrorists
would try to cause an industrial chemical release in the foreseeable
future. The Department noted that
attacking an existing chemical facility, for example, presents an easier and
more attractive alternative for terrorists than constructing a weapon of mass
destruction. In addition, the
Department concluded that many plants that contain hazardous chemicals would be
attractive targets for terrorists because of the plants= proximity to
densely populated areas.
Apart from this Justice Department threat
assessment, the Agency for Toxic Substances and Disease Registry, conducted a
study of more than 60 chemical plants in West Virginia, Georgia and
Nevada. The Agency found that security
at those plants ranged from fair to very poor.
Unfortunately, the Justice Department has not
yet completed a related vulnerability assessment of the nation=s chemical industry
that is required by law. I want to join
with the American Chemistry Council in urging the Justice Department to
complete this important study. It is
more necessary than ever.
I know that the chemical industry takes
safety seriously, and has been working hard to address security issues since
September 11. The American Chemistry
Council has issued security and transportation guidelines, and has scheduled
meetings with its members to promote them.
I applaud these actions, but I don=t think that they
are a substitute for regulations. I
believe that most companies will do the right thing, but I=m worried about the
least common denominator. A company
that wants to cut corners is not likely to implement voluntary guidelines. The American Chemistry Council or any other
industry association cannot and should not be put in the position of having to
self-regulate security standards. This
is clearly a government role, and one that requires new tools at the federal
level. Having said that, I want to add
that I want to work with industry on this bill, and fully expect industry to
play a key role in developing the regulations that the bill would require, as
they typically do. But I believe there
should be no dispute that new regulations are needed.
The primary reason is that there are
currently no mandatory federal security standards for any chemical
facilities. Even those in densely
populated areas. Even those with large
quantities of extremely hazardous chemicals.
We do require owners and operators of such facilities to prepare risk
management plans that analyze the potential off-site consequences of an
accidental release of regulated substances.
These reports must include plans to prevent an unintended release, and
to mitigate the effects of such a release, should it occur. However, no federal requirements are
currently in place that require specific steps to prevent releases caused by
criminal or terrorist activity.
Madame Chairman, S. 1602, the Chemical
Security Act of 2001, would give the Administration the mandate and the tools
to take common sense steps to address the highest priority threats from
accidents and attacks involving hazardous chemicals.
To enable the federal government to take
action upon enactment to address the most serious risks on a case-by-case
basis, the bill provides EPA and the Attorney General the authority to issue
administrative orders and secure relief through the courts to abate an imminent
and substantial endangerment from a potential accidental or criminal release.
To reduce threats in a more comprehensive
way, the bill directs the EPA Administrator to consult with the Attorney
General, states and localities to identify Ahigh priority@ categories within
our chemical production, processing, transportation and disposal
infrastructure. In designating these Ahigh priority@ categories, the
Administrator is to consider a set of factors, including the severity of
potential harm from a release, proximity to population centers, threats to
critical infrastructure and national security, and other factors the
Administrator considers appropriate.
The bill also directs the Administrator to consider threshold quantities
of chemicals in establishing high priority categories. This is to ensure that small businesses that
pose little risk are not subject to the regulations.
The bill then directs EPA to work with the
Justice Department to develop regulations for the high priority categories that
will require them to take adequate actions to prevent, control and minimize the
potential consequences of an accident or attack.
The bill includes other provisions to enable
the EPA and the Attorney General to carry out and enforce the act, such as the
authority to obtain information that may be needed, while providing for
protection of trades secrets and national security information.
Madame Chairman, the legislation is not
overly prescriptive, and this is intentional.
I believe that in the wake of September 11, it is self-evident that the
possibility of chemical attacks is something we need to examine. So the heart of the bill is a requirement
that EPA and DOJ work with state and local agencies to ensure that the highest
priority threats from chemical facilities are being addressed. But I don=t want to tie the
hands of the Administration. I think
that they should have wide latitude in determining what types of chemicals and
facilities need to implement better security measures and take other measures
to reduce risks. But I do think they
need identify the biggest risks and go after them.
Madame Chairman, strengthening security at
high priority chemical sources is an immediate and necessary step to safeguard
our communities. Over the longer, term,
however, I believe that our desire to protect our communities and our
environment will be best served by reducing the use of hazardous
chemicals. That=s why this bill
includes provisions to require high priority chemical sources to reduce risks
where practicable by using inherently safer technology, well-maintained
secondary control equipment, robust security measures, and buffer zones.
We have seen this type of approach work in
New Jersey, where the legislature enacted a law requiring facilities to
implement alternate processes that would reduce the risk of a release of
extremely hazardous substances. After
the enactment of this law, the number of water treatment plants using levels of
chlorine at a level considered extremely hazardous decreased from 575 in 1988
to 22 in September of 2001. Chlorine,
which can cause a number of problems include burning of the skin and eyes,
nosebleeds, chest pain, and death, was replaced by sodium hypochlorite or other
much less hazardous chemicals or processes.
Finally, Madame Chairman, I want to say that
like you, I am very disappointed that the Administration chose not to send
witnesses to the hearing today.
Congress and the Administration need to work together on chemical
security, as we do on all of the post-September 11 challenges and
vulnerabilities that we face. I know
that EPA has been working on this issue, because I saw Administrator Whitman
talking about it on CNN last Friday.
Even if the Administration was not prepared to provide detailed
testimony on the bill, they could have sent someone to answer whatever
questions they are prepared to answer at this point. So I want to reiterate my call to the Administration to work with
this committee and this Congress on chemical security. If you believe, as I do, that new federal
authorities and regulations are needed, then help us craft a proposal. If you=re opposed to new
security regulations, you need to explain that view to Congress and the
American people. Thank you Madame
Chairman.